8
Agriculture
/ Authors
Tom Van Bogaert 1
Jonathan Platteau 1
Hans Pirlet 2
/ Reviewers
Secretariat of the Strategic Advisory Council for
Agriculture and Fisheries (SALV)
Stijn Overloop 3
Alexander Vandenbohede 4
Agriculture and Fisheries Department, AMS
Flanders Marine Institute (VLIZ)
3
Flemish Environment Agency (VMM)
4
Ghent University
1
2
Citation:
Van Bogaert, T., Platteau, J., Pirlet, H., 2013. Agriculture. In:
Lescrauwaet, A.K., Pirlet, H., Verleye, T., Mees, J., Herman,
R. (Eds.), Compendium for Coast and Sea 2013: integrating
knowledge on the socio-economic, environmental and institutional
aspects of the Coast and Sea in Flanders and Belgium. Oostende,
Belgium, p. 177-186.
/177
Agriculture constitutes an important economic sector in the coastal zone1 and is, from a historical perspective,
responsible for land reclamation. Over the last few years, the importance of agriculture as an employer in the
European coastal regions has gradually decreased. Agriculture in the coastal zone is under pressure, mainly due to
the urban expansion. Between 1990 and 2000, 2,000 km² of farming land disappeared in the European coastal areas
(first 10 km). In Belgium, the agricultural area decreased by 1.85% (European Environment Agency (EEA) 2006 100281).
Nevertheless, as an integral part of the agro-nutrition system, agriculture remains an important source of employment
(Landbouwrapport 2012 221711). Agriculture also has an impact on the marine environment inter alia due to the supply
of nutrients such as nitrogen and phosphorus that can cause eutrophication of the coastal waters. Especially in the
southern part of the North Sea and the Channel, eutrophication constitutes a problem. 60% of the effluent nitrate and
31% of the effluent phosphorus derives from agriculture (OSPAR QSR 2010 198817). However, these nutrients originate
from the entire country and not only from agriculture in the coastal zone. Measurements by the Flemish Environment
Agency (VMM) indicate a reduction of the nitrate and phosphorus concentration in the surface water in Flanders over
the last few years. A further reduction of these nutrients from all sources remains important in order to achieve a good
status of the surface water and coastal waters (see theme Nature and environment) (Voortgangsrapport Mestbank
2012 226552).
/ 8.1 Policy context
An important part of the agricultural policy is determined at the European level by the Common Agricultural Policy
(CAP) of the Directorate-General for Agriculture and Rural development of the European Commission (EC) (more
information: Het GLB uit de doeken gedaan 2009 214678). In 2012, the CAP is characterised by two policy lines. The first
policy line is generally described as ‘Pillar I’ policy and includes market and price support as well as direct support
towards the farmer. The second policy line (‘Pillar II policy’) concerns the policy with regard to rural development
(Landbouwrapport 2012 221711). In June 2013, an agreement was reached about the CAP reform that should enter
into force on 1 January 2014. At the Flemish level, the agricultural policy is developed by the Flemish Minister
of Agriculture and Fisheries. The Agriculture and Fisheries Department (Departement Landbouw en Visserij) is
responsible for the preparation and evaluation of the policy (beleidsnota landbouw, visserij en plattelandsbeleid 214778).
The Agriculture and Fisheries Agency (Agentschap voor Landbouw en Visserij) implements the policy under the
direct authority of the minister, but has operational autonomy. The policy is supported by the Institute for Agricultural
and Fisheries Research (ILVO), Flanders’ Agricultural Marketing Board (VLAM) and the Strategic Advisory Council
for Agriculture and Fisheries (SALV). The province plays an important role in the education and innovation with
regard to agriculture. The provincial authorities also have ‘indirect competences’ concerning the permit policy, spatial
planning and the maintenance of non-navigable waters of the 2nd category (provinciale beleidsnota landbouw 20072012 225408). Furthermore, the agricultural policy is linked to other policy domains and authorities such as the Flemish
environment and spatial policy and the Federal Agency for the Safety of the Food Chain (FASFC). The developments
in the international/European and Flemish agricultural policy are discussed in detail in the following publication:
Landbouwrapport 2012 221711. A broader overview of the legal context with regard to agriculture is provided in the
coastal codex theme agriculture.
/ 8.2 Spatial use
In Flanders, the areas reserved for agricultural purposes are registered in the Flemish spatial structure plan (RSV)
as the ‘agricultural structure’. The regulations of the RSV demand that the Flemish Region demarcates a specific
area for agriculture (750,000 ha), nature and forest in the regional spatial structure plans or in the regional spatial
implementation plans. Regional plans have been reaffirmed when a consensus between the nature, forest and
agriculture sector was present. In addition to the demarcation in the RSV and the reaffirmation of the agricultural
area, it is possible to further refine this demarcation through the spatial implementation plans (RUPs). However, this
process has a serious delay.
The process of the demarcation of the agricultural areas in the region Coast-Polders-Westhoek started in 2004.
During this demarcation phase, a new integrated approach was used which took agriculture, nature and forest
simultaneously into account. In consultation with the municipalities, provinces and stakeholders a spatial vision
(ruimtelijke visie 108942) was drafted which indicates the most important structures: connected areas prohibited for
1
Unless stated otherwise, the coastal zone consists of the 10 coastal municipalities (Blankenberge, Bruges, Knokke-Heist, Bredene, De
Haan, Middelkerke, Ostend, De Panne, Koksijde and Nieuwpoort) and the 9 hinterland municipalities (Damme, Jabbeke, Zuienkerke, Diksmuide,
Lo-Reninge, Gistel, Oudenburg, Alveringem and Veurne).
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agriculture, valleys for nature development, etc. The consultation process finally resulted in 95,100 ha of reaffirmed
agricultural area in the region Coast-Polders-Westhoek (Danckaert 2013 225409). The regional spatial implementation
plans (GRUPs) for agriculture, nature and forest in this region can be consulted on the website of the RSV.
Parts of the agricultural structure are described in the spatial structure plan of the province of West Flanders (PRSWV). The ‘coast’ and ‘the polder area’ (parts of the spatial structure in the PRS-WV) are important for the research
area of the current document. Few agricultural activities are still present in the coastal zone due to the strong urban
pressure, the economic developments (e.g. harbour of Zeebrugge) and increased nature protection.
The polders are a homogeneous agricultural area with few built-up areas. In Zeebrugge this area is significantly
interrupted by the port activities. In the transition zone to the coastal municipalities and the agglomeration of Bruges,
agriculture is under significant pressure due to urbanisation. To support agriculture, areas have been demarcated
in the provincial spatial implementation plans in the western and eastern polder area where building is prohibited
(PRS-WV).
The instrument of land exchange consolidation has been invented to achieve a solid agricultural structure, as
described in the spatial planning (see above). In Flanders, the Flemish Land Agency (VLM) is responsible for these
land exchange consolidation projects (more information: website VLM). The purpose of this instrument is to improve
the economic exploitation of the agricultural enterprises as well as to improve the areas for nature and recreational
purposes. Almost 20% of the total agricultural area of West Flanders has been subject to land exchange consolidation.
In the Polder region, a high concentration of land exchange consolidations is present: approximately 28,700 ha of
which the majority constitutes a connected area from the south of Ostend towards Veurne (PRS-WV). An overview
of the spatial projects can be found in the database on the VLM-website.
The agricultural area in the coastal zone constitutes a total surface of 70,761 ha (figures 1 and 2). This corresponds
to 11.5% of the total agricultural area in Flanders (Source: Agriculture and Fisheries Department based on the FPS
Economy - Algemene Directie Statistiek en Economische Informatie (ADSEI)). The polders are characterised by the
large size of the agricultural enterprises. The largest enterprises of West Flanders are present in this area. In 1996, the
average size of an agricultural enterprise was approximately 28 ha (West Flanders: 20 ha). In comparison with 1986,
the surface of an average agricultural enterprise increased by 26% (West Flanders: 33%). Besides the land exchange
consolidations (see above), the further automation and the relative decrease in land prices, the increase in scale can
be largely attributed to the decline of the number of farmers resulting in lands being absorbed by other enterprises
(PRS-WV). All parcels registered by the Agriculture and Fisheries Agency and their culture can be downloaded in GIS
format on the website of the Flemish Geographical Information Agency (FGIA).
SURFACE OF THE AGRICULTURAL AREA IN HA IN THE COASTAL
AND HINTERLAND MUNICIPALITIES IN 2011
14,000
12,000
10,000
ha
8,000
6,000
4,000
2,000
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Figure 1. Surface of the agricultural area in ha in the coastal and hinterland municipalities (2011) (Source: Agriculture and
Fisheries Department, based on FPS Economy - ADSEI).
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AGRICULTURAL AREA IN THE COASTAL ZONE
Figure 2. The agricultural area in the coastal zone (Coastal Atlas).
/ 8.3 Societal interest
In 2011, 4,280 persons (3,146 full-time employees) were employed in 2,249 agricultural enterprises in the coastal
and hinterland municipalities. This figure corresponds to 8.7% of all agricultural enterprises in Flanders. The majority
of the enterprises and employment in the coastal zone is located in the hinterland municipalities (figure 3). The
specialisation of these enterprises concerns primarily the cultivation of crops and the rearing of cattle, pigs and
poultry (table 1) (Source: Agriculture and Fisheries Department, based on FPS Economy – ADSEI, see also the
specific theme agriculture and horticulture in the publication: West-Vlaanderen ontcijferd 2012 226504).
Table 1. Number of enterprises in the coastal area in 2011 divided by specialisation (Source: Agriculture and Fisheries
Department, based on FPS Economy - ADSEI).
SPECIALISATION
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NUMBER OF ENTERPRISES IN THE COASTAL ZONE (2011)
1) agriculture
453
2) horticulture
81
3) milk production
254
4) beef production
352
5) mixed cattle breeding
198
6) other grazing livestock (sheep, etc.)
108
7) pigs and poultry
354
8) mixed enterprises
258
9) mixed cattle breeding enterprises
191
Total of enterprises
2.249
NUMBER OF AGRICULTURAL ENTERPRISES AND EMPLOYED
PERSONS IN THE COASTAL AND HINTERLAND MUNICIPALITIES (2011)
Number of agricultural enterprises
and employed persons
3,500
3,000
2,500
2,000
Number of agricultural enterprises
1,500
1,000
Employed persons
500
0
Coastal municipalities
Hinterland municipalities
Figure 3. Number of agricultural enterprises and employed persons in the coastal and hinterland municipalities in 2011
(Source: Agriculture and Fisheries Department, based on FPS Economy - ADSEI).
The soil suitability of the polders is remarkably homogeneous: the complete area is ‘very suitable’ or ‘suitable’ for
agriculture and grazing land (PRS-WV). For example, the cultivation of beets in 2011 accounted for 5.2% of the
agricultural area in the coastal zone compared to 3.3% in Flanders (Source: Agriculture and Fisheries Department
- AMS, based on FPS Economy - ADSEI). In general, the area is not suitable for the remaining cultivation groups,
except for the cultivation of fruits for which local areas of moderate suitability are present. The polders differ from
other regions due to the high amount of cereals in the agricultural area: about 28% (West Flanders: 19%). Not much
horticulture is present in the polders (PRS-WV).
The agricultural enterprises in the coastal zone account for 140,984 cows, 9,597 sheep, 2,760 goats and 1,809,905
heads of poultry (Source: Agriculture and Fisheries Department, based on FPS Economy – ADSEI).
Besides the economic importance, agriculture also contributes to landscape creation, the management of open
space (see also theme Nature and environment) and certain ecosystem services (e.g. water regulation, recharge of
ground water, etc.) in the coastal zone.
/ 8.4 Impact
In the section ‘impact’, the (general) effects of agricultural activities on the ecosystem are discussed, as well as the
indirect effects of these activities on the marine environment (eutrophication). Also, the phenomenon of salinisation
is discussed. Although salinisation is mainly caused by other human activities, it has a considerable effect on the
agricultural activities in the coastal zone.
8.4.1 Effects on the ecosystem
The different effects of the agricultural activities on the environment in Flanders (not specific for the coastal area) are
listed in the publications Wustenberghs et al. (2009) 214735, Van Steertegem (2012) 138542 and Landbouwrapport 2012
221711
. A description of the ecosystem of the polder area is discussed in the theme Nature and environment. The
effects on the ecosystem are inter alia:
• The use of chemical products for crop protection (more information: Lenders et al. 2011 225410);
• The use of water (more information: salinisation of the coastal area, Lenders et al. 2011 225410);
• The use of energy (more information: Lenders et al. 2011 225410);
• The impact on the soil quality and erosion sensitivity;
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•
•
•
•
•
Fertilisation (more information: eutrophication of the coastal waters Voortgangsrapport Mestbank 2012
Overloop et al. 2009 214728);
The emission of greenhouse gases;
The emission of particulates;
Waste production;
The impact on the spatial use.
,
226552
THE EVOLUTION OF AMMONIA EMISSIONS FROM CATTLE
BREEDING AND THE TOTAL PHOSPHORUS AND NITROGEN LOSSES
(IN KG) IN THE COASTAL ZONE
14
12
5
10
4
8
3
6
2
4
1
0
2002
Phosphorus losses (x 104 kg)
Nitrogen losses and ammonia emissions (x 106 kg)
6
Total phosphorus losses
Ammonia emissions
Total nitrogen losses
2
2004
2006
2008
2010
0
2012
Figure 4. The evolution of ammonia emissions from cattle breeding and the total phosphorus and nitrogen losses (in kg)
in the coastal zone (Source: www.lokalestatistieken.be).
In 2010, the total ammonia emission in the coastal zone amounted to 11.1% of the total Flemish emission. The
SENTWA model (System for the Evaluation of Nutrient Transport to Water) is used to estimate the losses of nitrogen
and phosphorus from agriculture. This model indicates that the total phosphorus and nitrogen losses in the coastal
zone in 2011 accounted for 9.9% and 11.6%, respectively, of the total Flemish losses.
8.4.2 Eutrophication of the coastal waters
Along with some other actors, the use of fertilisers in agriculture has played an important role in the increase of the
nutrient concentrations (nitrogen N, phosphorus P) in the aquatic ecosystems. An excessive supply of nutrients
or ‘eutrophication’ amplifies the production of phytoplankton. A phytoplankton bloom can lead to changes in the
structure of the ecosystems, destruction of habitat and a decrease in biodiversity (André et al. 2010 200613). Over the
last 20 years, the phosphorus concentrations have decreased in the sea water of the Belgian part of the North Sea
(BNS), whereas the nitrate concentrations have varied strongly and without any clear trend (Goffin et al. 2007 114225).
Besides the transport of nutrients by rivers, there is an increased awareness of the atmospheric supply (OSPAR QSR
2010 198817). The eutrophication of the coastal waters has been comprehensively studied in the AMORE (AMORE
project BELSPO), AMORE II (AMORE II project BELSPO) and AMORE III projects (AMORE III project phase 1 en
phase 2 BELSPO project) (more information: Lancelot & Rousseau 2004 109039, Rousseau et al. 2006 127722, Lancelot
et al. 2007 109769, Lancelot et al. 2009 211949). The ISECA project aggregates the knowledge and information about the
eutrophication in the southern part of the North Sea.
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8.4.3 The salinisation of the coastal area
An important impact on the agriculture in the coastal area is salinisation. During this process brackish or salt ground
water can penetrate in the root layer of the soil. This causes an accumulation of salts (Peeters et al. 2010 214732,
Peeters et al. 2011 2147710). Naturally, there is a distribution of fresh and salt/brackish water in the coastal area. This
distribution between fresh and salt water is the result of a complex history, influenced by human activities such as
water extraction, infrastructure works (such as harbour expansion, tunnels, drainage, etc.) and interventions in the
water management. These hydraulic interventions in coastal areas may result in the short or long term in changes
of the fresh-salt water distribution, possibly leading to salinisation (Vanleberghe & Vanhoutte 2001 24538, Van Houtte
2002 24654, Vandenbohede et al. 2008 214769). Furthermore, sea level rise increases the salt pressure towards shallow
groundwater and surface water. The fresh water lens in the dunes acts as a buffer against the intrusion of salt sea
water in the hinterland (Van den Eynde et al. 2011 212421 (CLIMAR project phase 1 en phase 2 BELSPO) and CLIWAT
project).
/ 8.5 Sustainable use
The international (WTO, climate conference of Copenhagen 2009, conference about sustainability in New York 2009,
etc.) and European policy (the Treaty of Lisbon, the EU-2020 Strategy, the CAP, etc.) to maintain a sustainable
agriculture is discussed in Landbouwrapport 2012 221711. In Landbouwrapport 2012 221711 several sustainability themes
in agriculture are linked with each other, based on indicators. Furthermore, recommendations and measures to reduce
the environmental impact of agriculture in Flanders are listed in Wustenberghs et al. (2009) 214735, Van Steertegem
(2009) 142609 and Van Steertegem (2012) 138542. Gobin et al. (2008) 127585 discusses the adaptation possibilities of Flemish
agriculture whereas Mathijs et al. (2012) 226553 focuses on the sustainability of food production and consumption from
a transition perspective.
The sustainable compatibility of several user functions in the coastal area (housing, tourism, recreation, agriculture,
industry, nature, etc.) is discussed within the European recommendation for integrated coastal zone management
(ICZM) (COM (2002) 413). In Belgium, the Coordination Centre for ICZM is the contact point for coastal zone
management (see theme Integrated coastal zone management). The compatibility of different sectors in the polders
is discussed in a case study of the Uitkerkse polder (Blankenberge) (Bogaert et al. 2002 30300).
Measures and regulations for certain effects linked to agricultural activities that have a specific importance for the
coastal zone are discussed below.
8.5.1 Measures (in agriculture) against eutrophication
In the Northeast Atlantic Ocean, OSPAR created a ‘common procedure (2005) 226582’ for the identification of the
eutrophication status (Eutrophication Status of the OSPAR Maritime Area, 2008 214727). This procedure serves as a
framework to identify the actions described in the OSPAR Eutrophication Strategy (2003) 214845. A part of this strategy
concerns a eutrophication monitoring programme (see also OSPAR website).
At the European level, the issue of eutrophication is covered by several directives. The Nitrates Directive (91/676/EC)
aims to reduce the leaching of nitrates from agriculture (Goffin et al. 2007 114225). In the Marine Strategy Framework
Directive (MSFD) (2008/56/EC) , eutrophication is defined as one of the descriptors for determining the environmental
status. The criteria and methodological standards to determine the environmental status are described in Ferreira
et al. (2010) 199550. In the Water Framework Directive (WFD) (2000/60/EC) an obligation was imposed to reach a good
status of the surface and ground waters by 2015 (see theme Nature and environment). In this context, chemicals
that contribute to eutrophication such as nitrogen and phosphorus are listed among the pollutants. Furthermore,
eutrophication is discussed in the Directive 91/271/EC concerning urban waste-water treatment, Directive 2008/1/
EC concerning integrated pollution prevention and control and Directive 2001/81/EC on national emission ceilings for
certain atmospheric pollutants.
On the Flemish level, the nitrates directive is implemented in the Decree of 22 December 2006. This decree was
originally approved on 23 January 1991 and was afterwards repeatedly adapted. The Decree of 22 December 2006
came into force on 1 January 2007. On 1 January 2011, the fourth fertiliser action plan was launched (MAP-4, 20112014) (for implementing decisions and changes: website VLM). The WFD was implemented on the Flemish level in
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the Decree of 18 July 2003 on integrated water management (for implementing decisions and changes: website
Coordination Committee on Integrated Water Policy) and on the federal level in the Royal Decree of 23 June 2010
concerning the good status of surface waters. In addition, the MSFD is incorporated in Belgian legislation by the
Royal Decree of 23 June 2010 concerning the marine strategy for the BNS. The VMM has a monitoring network for the
water quality at its disposal that was expanded in 1999 with specific measuring points for agriculture (the so-called
MAP-network). In Lancelot et al. (2011) 204120 the costs and ecological efficiency of measures to prevent eutrophication
in the southern Bight of the North Sea were modelled (see also AMORE III project phase 1 and phase 2 of the BELSPO
project, and TIMOTHY BELSPO project).
8.5.2 Measures against salinisation
In COM (2002) 179 and COM (2006) 231, the EC pleas for a Thematic Strategy for Soil Protection. In spite of several
attempts, no agreement has been reached between the Member States. This directive would be inter alia focused on
the prevention of soil damage due to salinisation (Landbouwrapport 2010 205845). Furthermore, intrusions of salt water
were also included in the WFD (2000/60/EC) (see theme Nature and environment) as parameters for the quantitative
status of the ground water.
The WFD was translated into Flemish legislation by the Decree of 18 July 2003 concerning integrated water
management (website Coordination Committee on Integrated Water Policy). The WFD is also partially implemented
in Belgian legislation by the Royal Decree of 23 June 2010 concerning the good status of surface waters. The quality
of the surface and ground water is monitored by the VMM (more information: Vandenbohede et al. 2010 143943, the
legislation is listed in the coastal codex theme ground water extraction).
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/ Legislation reference list
Table with European legislation. The consolidated version of this legislation is available on Eurlex.
EUROPEAN LEGISLATION
Abbreviations (if available)
Title
Year
Number
Council Directive concerning urban waste-water treatment
1991
271
Nitrates Directive
Council Directive concerning the protection of waters against
pollution caused by nitrates from agricultural sources
1991
676
Water Framework Directive
Directive 2000/60/EC establishing a framework for Community
action in the field of water policy
2000
60
Directive on national emission ceilings for certain atmospheric
pollutants
2001
81
Directive concerning integrated pollution prevention and control
2008
1
Directive 2008/56/EC establishing a framework for community action
in the field of marine environmental policy
2008
56
Communication from the Commission to the Council, the European
Parliament, the Economic and Social Committee and the Committee
of the Regions - Towards a Thematic Strategy for Soil Protection
2002
179
Recommendation of the European Parliament and of the Council of
30 May 2002 concerning the implementation of Integrated Coastal
Zone Management in Europe
2002
413
Communication from the Commission to the Council, the European
Parliament, the European Economic and Social Committee and the
Committee of the Regions - Thematic Strategy for Soil Protection
2006
231
Directives
Marine Strategy Framework Directive
Other (Decisions, Communications,
White Papers, etc.)
Table with Belgian and Flemish legislation. The consolidated version of this legislation is available on Belgisch staatsblad
and the Justel-databases.
BELGIAN AND FLEMISH LEGISLATION
Date
Title
Royal Decrees
KB van 23 juni 2010
Koninklijk besluit betreffende de vaststelling van een kader voor het bereiken van een goede
oppervlaktewatertoestand
KB van 23 juni 2010
Koninklijk besluit betreffende de mariene strategie voor de Belgische zeegebieden
Decrees
Decreet van 18 juli 2003
Decreet betreffende het integraal waterbeleid
Decreet van 22 december 2006
Decreet houdende de bescherming van water tegen de verontreiniging door nitraten uit
agrarische bronnen
/185